Ugljevik power station

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Ugljevik power station is an operating power station of at least 300-megawatts (MW) in Ugljevik, Republika Srpska, Bosnia and Herzegovina with multiple units, some of which are not currently operating. It is also known as Ugljevik 3; previous expansion called Ugljevik 2 (Expansion Unit 1, Expansion Unit 2).

Location

Table 1: Project-level location details

Plant name Location Coordinates (WGS 84)
Ugljevik power station Ugljevik, Republika Srpska, Bosnia and Herzegovina 44.683446, 18.968516 (exact)
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Unit-level coordinates (WGS 84):

  • Expansion Unit 1, Expansion Unit 2: 44.683446, 18.968516
  • Unit 1: 44.682187, 18.967371

Project Details

Table 2: Unit-level details

Unit name Status Fuel(s) Capacity (MW) Technology Start year
Expansion Unit 1 Pre-construction coal: lignite 350 unknown
Expansion Unit 2 Pre-construction coal: lignite 350 unknown
Unit 1 Operating coal: lignite 300 supercritical 1985

Table 3: Unit-level ownership and operator details

Unit name Owner Parent
Expansion Unit 1 Comsar Energy Republika Sprska doo [100%][1] Comsar Energy Group [90.0%]; Rudnik i Termoelektrana Ugljevik AD [10.0%]
Expansion Unit 2 Comsar Energy Republika Sprska doo [100%][1] Comsar Energy Group [90.0%]; Rudnik i Termoelektrana Ugljevik AD [10.0%]
Unit 1 Rudnik i Termoelektrana Ugljevik AD [100%][2] Rudnik i Termoelektrana Ugljevik AD [100.0%]

Project-level coal details

  • Coal source(s): Ugljevik basin

Background

The 300 MW plant began operating in 1985 in the city of Ugljevik, situated in the foothills of the Mount Majevica. The city is named after coal - "ugalj" - which has been mined since 1899. Construction of the first unit was underway in 1976. A second unit was also underway, but construction was halted during the Bosnian war. The plant is considered a sister unit to Gacko Thermal Power Plant.[3]

The plant is owned and operated by RiTE Ugljevik, a subsidiary of Elektroprivreda Republike Srpske.

The plant produced 1,484 GWh in 2023, meeting its business plan.[4]

Coal Supply and Operational Constraints

The plant suspended operations for 10 days in early December 2024 due to unavailability of coal and coal quality issues. The lack of coal is the result of long-term problems, among which is the expropriation of land, which led to a decrease in the amount of coal in landfills and the impossibility of mine development.[5][6] In late December 2024, operations of the plant were suspended for the second time due to failures of several transmission lines, leaving around 200,000 people without power.[6] The plant restarted operations 10 days later in January 2025.[7]

In November 2025, Ugljevik coal-fired power plant temporarily halted operations again due to a coal shortage after severe weather disrupted fuel deliveries. Mining had not yet begun at the Ugljevik-Istok 2 deposit, leaving the plant without sufficient coal supply and no clear timeline for returning to the grid.[8]

The entire electricity system of the Republic of Srpska is facing significant difficulties, with about EUR 350 million required to operate the system at full capacity, but these funds are not available. Another challenge for the power plant Ugljevik is a ruling from the Arbitration court in Belgrade under which the company has to pay a compensation of EUR 67 million to Slovenia for previously undelivered electricity and is also required to deliver one third of its production to Slovenia as long as the power plant remains operational.[7][9]

In January 2026, the Government of Republika Srpska decided to transfer the concession for the Ugljevik Istok 2 mining field to RiTE Ugljevik. ERS director Luka Petrović said the concession field would secure the operation of the Ugljevik thermal power plant for more than 20 years, while RiTE Ugljevik director Žarko Novaković said the transfer was aimed at securing sufficient coal for stable plant operation.[10]

In February 2026, Balkan Green Energy News reported that the Ugljevik thermal power plant was out of operation because of coal shortages and had reduced salaries for all employees. The report stated that the transfer of part of the Ugljevik coal deposit from Comsar Energy RS to RiTE Ugljevik was expected to unblock around 50 million tonnes of coal reserves, enough to supply the power plant for about 25 years.[11]

In April 2026, Slovenian firm Elektrogospodarstvo Slovenije – razvoj in inženiring (EGS-RI), a subsidiary of state-owned Holding Slovenske Elektrarne (HSE), reached a settlement with RiTE Ugljevik and its parent company Elektroprivreda Republike Srpske (ERS), ending a dispute formally dating back to 2009 over legacy investments from the Yugoslav era. The parties signed an agreement on outstanding claims of EUR 37.4 million plus interest. ERS director Luka Petrović stated that the first quantities of coal had arrived from the Ugljevik Istok 2 open-cast mine and that the plant was expected to return to operation within ten days.[12]

In May 2026, Serbia Energy reported that RiTE Ugljevik had recorded a loss of EUR 18.3 million in the first quarter of 2026, exceeding its full-year 2025 loss by around EUR 4 million. Management attributed the result to the suspension of electricity and coal production from early 2026, caused by insufficient coal supply linked to delays in overburden removal and development works at the Ugljevik Istok open-pit mine.[13]

Ugljevik 3 Expansion

In August 2012, Comsar Energy Republika Srpska – a joint venture company between Comsar Energy (90%) with RiTE Ugljevik (10%), a subsidiary of Elektroprivreda Republike Srpske (ERS) – was unveiled. The company was formed to add two new 300 megawatt (MW) coal-fired units to the existing 300 MW power station.[14]

In September 2012, the company's environmental impact statement was submitted to the government. The government released a statement announcing that a public hearing on the project would be held on October 10.[15]

In 2014, Comsar Energy Republika Srpska said the company had begun the construction of the Ugljevik 3 power station, with a projected operation date of 2016.[16] The station would be fuelled by brown coal from new surface mines in Delići, Peljave-Tobut, and Baljak Coal Mines in the Ugljevik basin, which would be built simultaneously alongside the plant by Comsar Energy.[16] According to local observers, construction had not begun as of October 2014.

In January 2015, China National Electric Engineering Company signed an MOU with the government of Republic of Srpska, BiH to develop the Ugljevik 3 power station.[17] As of October 2016, the plant was still seeking financing and facing lawsuits challenging its permit as incongruous with EU regulations of new coal plants.[18]

In July 2017, the Supreme Court of the Republika Srpska Entity cancelled the environmental permit based on a court challenge by the Center for Environment from Banja Luka. However, the Ministry of Spatial Planning, Construction and Ecology responded by issuing another permit without repeating the environmental impact assessment process. This second permit was also challenged in court by the Center for Environment, and annulled in June 2019.[19]

In May 2019, Comsar Energy announced the company was leaving Bosnia & Herzegovina, and terminating all existing projects and investments there, including Ugljevik. Elektroprivreda Republike Srpske was reportedly interested in buying Comsar's shares in the coal plant project.[20]

However, in early 2021, the Government of Republika Srpska extended Comsar Energy's concession for construction and operation of Ugljevik 3 from 30 to 44 years. According to local campaigners, this occurred despite the fact that the concession agreement was violated on several occasions because permits were not obtained or preparation works started.[21]

On June 18, 2021, China National Electric Engineering Corp signed an EPC contract to build the 2x350 MW thermal plant + open pit coal mine. The deal was signed with a Polish company called Sunningwell International LTD.[22][23] Even though firms from China and Poland signed a construction agreement just two months earlier, Comsar Energy was reportedly negotiating a takeover according to September 2021 news.[24]

In September 2021, China announced it would stop developing new coal power projects outside of its own borders.[25] In January 2022, it was reported that Chinese bank loans will not be available for the Ugljevik project.[26]

In March 2022, the Center for the Environment from Banja Luka sued the Ministry of the Republika Srpska over the approval of a third environmental impact study. The study was finalized in December 2021. While Comsar was still actively seeking new funders, the Center called into question the viability of new funding and where the funding for the study itself had come from. It was expected that forward progress on the project would be halted until court proceedings occurred. The Center's announcement stated that the expansion "has no future".[27]

In July 2022, Minister of Energy and Mining of the Republic of Srpska Petar Đokić said he doubted that the Ugljevik 3 coal plant project would be implemented. He made the remark immediately after the Center for Environment from Banja Luka, the entity's capital city, said it sued his ministry for granting the environmental permit in violation of the rules and an agreement with the Energy Community Secretariat. A decision on the lawsuit may be expected by March 2023.[28][29]

In December 2022, the District Court in Banja Luka annulled the decision of the Ministry, thereby reversing the approval of the project's environmental impact study. The primary rationale was the lack of public participation in the environmental planning process. In addition, there was inadequate assessment of pollution emissions such as carbon dioxide. The Center for the Environment planned to continue pressuring for the official cancellation of the 700 MW expansion.[30]

The Ministry, after the judicial annulment of the study in December 2022, issued another decision approving the study. In February 2023, the Center filed a lawsuit.[31]

In July 2023, Balkans Beyond Coal and others reported that the environmental permit for Ugljevik III was annulled for the third time by Banja Luka District Court,[32] in another blow against the controversial project. However, the administrative dispute was reportedly not concluded quite yet ("upravni spor još uvijek nije okončan").[31] Later in July, the Ministry of Physical Planning, Construction and Ecology of the Republic of Srpska suspended the environmental permit procedure for the power plant, pending a ruling from the Supreme Court.[33]

In August 2023, President Dodik of Republika Srpska was reportedly seeking financing for energy projects from Hungary, including the planned Mrsovo hydroelectric power plant and Ugljevik 3.[34]

In early October 2023, the Ministry changed its mind and issued yet another environmental permit for the project, according to Bankwatch report.[35]

In late December 2023, Center for Environment reported that District Court in Banja Luka issued a decision which accepted the lawsuit filed by the Center and annulled the Environmental Impact Assessment Study issued by the Ministry of Spatial Planning, Construction, and Ecology, awaiting Supreme Court's decision.[36][37] However at the end of January 2024, the Ministry approved the EIA prepared in December 2021 yet again.[38] The project holder is Comsar Energy Republic of Serbia LLC.[38]

The EIA and environmental permit are two separate legal proceedings.[33] The understanding is that no environmental permit can be issued without an EIA being approved first. However when an EIA approval is annulled, the environmental permit is not automatically annulled with it, even though it in principle becomes illegal. Even though both EIA and environmental permit were approved as of late January 2024, Global Energy Monitor's understanding is that these decisions are still being contested by the Center for Environment and the construction permit is missing.

In July 2024, the court again ruled in favour of the Center for Environment and annulled the environmental permit for Ugljevik III for the fourth time.[39] However, the EIA approval from January 2024 appeared to be still in place.

In early 2025, the Minister of Energy and Mining of the Republic of Srpska stated that the existing coal plants of the Republike Srpske (Ugljevik and Gacko) are old and inefficient, requiring large investments in maintenance, so it is cheaper to build a new coal plant. Comsar still holds a concession for the construction of the plant and the government should push harder to build a new coal power plant in Ugljevik and find a financial partner to do so.[40] In April 2025, the government of the Republic of Srpska started the process of acquiring full ownership of the joint venture company.[41]

In September 2025, the District Court in Banja Luka again annulled the environmental permit for Ugljevik 3, reportedly upholding the lawsuit by the Center for Environment for the fifth time.[42]

In October 2025, CEE Bankwatch Network stated that Republika Srpska was the only part of the Western Balkans still planning new lignite capacity, but that the Ugljevik III and Gacko II projects were highly unlikely to secure financing.[43]

Proposed Change in Ownership (Expansion)

In September 2022, the Republic of Srpska announced that they would be buying the project from the Russian company Comsar. According to BiH politician Milorad Dodik: "[Comsar] have obtained all the building permits, they have feasibility studies and we said that we are ready and that Republika Srpska will take over the rights to build it" (Google translate). Dodik said that the Republic was seeking a construction partner for both the expansion project and the modernization of the existing plant.[44] However this has not gone ahead and Comsar Energy appeared to be majority shareholder of the project company.[38]

Regulatory Context

Draft NECP: No New Coal

In April 2023, Bosnia and Herzegovina announced a draft national energy plan until 2030 that foresees no new coal-fired plants.[45] The draft NECP did not mention Ugljevik 3.[33]

In July 2023, a 'public' consultation about Bosnia and Herzegovina's (BiH) draft National Energy and Climate Plan (NECP) was underway. Bankwatch Network summarized the following: "Despite considerable solar and wind potential, the Federation of BiH and Republika Srpska governments have relentlessly pushed to build new coal plants such as Tuzla 7 and Ugljevik III – as well as decades-old hydropower projects in highly sensitive locations – long past their sell-by dates. These dinosaurs have heavily burdened previous energy planning and left little space for new ideas. But the draft NECP finally looks like it was written in the 21st Century: it states that there will be no new fossil fuel plants – coal or gas. This is a significant step that must be maintained in the final version of the NECP."[46][47]

In December 2023, Energy Community Secretariat published comments and recommendations on the draft NECP, summarizing that "the draft plan its current form lacks the analytical basis, the assessment of the impacts of the planned policies and the investments needed to achieve the corresponding targets and objectives. It does not fulfil its objective, namely, to provide a clear set of policies and measures that will set Bosnia and Herzegovina on a predictable path to achieve its 2030 energy and climate targets." Detailed recommendations were provided in the Secretariat report. The final NECP has to be submitted until 30 June 2024.[48]

The Government of Bosnia and Herzegovina conducted additional public consultations and developed a final draft in July 2024.[49][50] No new coal was envisaged, but there was no coal phase out plan provided either. The latest publicly available draft still contained missing elements such as an analytical basis, formulation of tangible policies and measures with an assessment of the impacts and the investments needed to achieve the corresponding targets and objectives. The Government still needed to conduct Strategic Environmental Assessment and incorporate the findings in the final document.[49]

As of March 2025, BiH has not yet adopted its final NECP.[51] Similarly, as of December 2025, the final NECP has not been adopted yet.[52]

The European Commission's 2025 Country Report on Bosnia and Herzegovina strongly criticised the country's energy policy, and the Energy Community had initiated infringement proceedings against Bosnia and Herzegovina over non-compliance with emission limits.[53]

CBAM and Energy Exports

The Carbon Border Adjustment Mechanism (CBAM), which entered into force on 1 January 2026, applies to Bosnia and Herzegovina without exceptions, including for electricity exports to the EU.[54]

A March 2026 civil society position paper stated that Bosnia and Herzegovina had exported an average of around 21% of the electricity it produced to the EU between 2014 and 2023, and that exports to Croatia fell in January and February 2026 compared to previous years after CBAM entered its definitive phase. The same paper stated that Bosnia and Herzegovina had taken no significant steps towards gaining an electricity-sector exemption from CBAM since October 2025.[55]

Opposition

On April 24, 2014, the Center for Environment in Bosnia, Herzegowina, and Serbia held a demonstration in front of the coal-fired power plant Ugljevik. The demonstration was in response to the publication, "Expensive, dirty, poisonous – energy from coal and its dark secrets." Protestors held a sign that said in Bosnian, "And what's the price of health?" as well as an inflatable pair of damaged lungs as an art piece.[56]

24 Apr 2014: Activists carry injured lungs against Ugljevik power plant[56]

In 2018, Bosnia and Herzegovina authorities acknowledged that their environmental assessments were illegal and have decided to not use the environmental permit from 2014. In 2014, the Center for Environment from Banja Luka sent a complaint about the environmental permit for building the Ugljevik plant to the Energy Community Secretariat, which was eventually sent to the Ministerial Council in Skopje. The complaint "outlined how the EU's Directive on Environmental Impact Assessment – binding for Bosnia and Herzegovina under the Energy Community Treaty – has been violated" because the plans for the Ugljevik plant did not include the plant's impact on the environment, specifically pertaining to CO2 emissions and metal pollution. Furthermore, "the data on emissions of SO2, NOx and dust from the plant are demonstrably false."[57]

On February 19, 2019, the Health and Environment Alliance (HEAL), Sandbag, Climate Action Network Europe, CEE Bankwatch Network, and Europe Beyond Coal released a Chronic Coal Pollution report. The report urged the EU to "take a tougher stance on air pollution from coal power plants in the Western Balkans," including the Ugljevik power plant in Bosnia-Herzegovina. Their main issue with the power plants were the premature deaths, bronchitis cases in children, and health costs of up to 11,535 million euros ($13 million).[58]

In September 2021, representatives of the local community and environmentalist organizations expressed concern during a public debate that the draft environmental impact assessment study for the controversial Ugljevik 3 thermal power project was incomplete. They said the document did not reveal the real potential damage and claimed it made no sense to build the facility while coal phaseout dates are being determined in the region and Europe.[24]

Environmental Impact

In September 2024, CEE Bankwatch published a report stating that Ugljevik power station was the largest emitter of sulfur dioxide in 2023 among coal plants included in the National Emissions Reduction Plans of Bosnia and Herzegovina, Kosovo, North Macedonia, and Serbia. Ugljevik's operator had invested in a desulfurization unit but, after experiencing technical problems, no longer operates it because it is considered an "economic burden".[59][60]

Despite having obtained an operating permit for its EUR 85 million de-SOX unit in November 2021, Ugljevik power plant emitted the highest absolute amount of SO2 in 2023 – 97,189 tonnes. This represented an increase compared to 2022. The company admitted that the de-SOX is not working mainly because it is an 'economic burden', and also due to a lack of disposal facilities for the gypsum that results from the process. The desulphurisation equipment clearly did not work regularly during 2023, despite testing having reportedly finished successfully in August 2024. It looks increasingly doubtful that this project will ever be properly utilised to bring the Ugljevik plant into compliance with its SO2 ceilings and with the Industrial Emissions Directive limit values it needs to reach by 2027.[61]

In June 2025, CEE Bankwatch reported that Ugljevik power station continued to be the biggest individual polluter of sulfur dioxide among coal plants included in the National Emissions Reduction Plans, emitting 14 times its allowable limit in 2024.[62][63][64] According to the assessment, the plant released about 112,943 tonnes of SO₂ – over 11 times the permitted level – highlighting the continued reliance on outdated coal technology and contributing to severe air pollution and public health risks in the country.[65]

Financing

A loan from a Chinese bank (possibly China Development Bank) was previously contemplated.[66] In January 2022, it was reported that Chinese bank loans will not be available for the Ugljevik project.[26]

In August 2023, President Dodik of Republika Srpska was reportedly seeking financing for energy projects from Hungary, including for Ugljevik 3.[34]

In January 2025, the Government of Bosnia's Republic of Srpska announced that they would acquire a 90% equity stake in the plant from Comsar Energy.[67][68]

In August 2025, the Government of the Republic of Srpska announced plans to offer EUR 124 million to buy back Comsar Energy RS and reclaim associated coal mining concessions, including rights at the Ugljevik Istok 2 deposit originally granted in 2013 for the unbuilt Ugljevik 3 project. The buyback was described as urgent due to coal shortages threatening operations at the existing Ugljevik thermal power plant.[69]

Articles and Resources

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Additional data

To access additional data, including an interactive map of coal-fired power stations, a downloadable dataset, and summary data, please visit the Global Coal Plant Tracker on the Global Energy Monitor website.